YUKON 2000 - emrlibrary.gov.yk.ca · grizzly bear are permitted, while cougar, bison, elk,...

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Transcript of YUKON 2000 - emrlibrary.gov.yk.ca · grizzly bear are permitted, while cougar, bison, elk,...

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YUKON 2000

HUNTING, TRAPPING, GUIDING

(Commercial Use of Wildlife)

Background Discussion Paper

Prepared for the

Workshop Conference; November 1-2,, 1986

Policy and Planning Branch

Department of Renewable Resources

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1. INTRODUCTION

HUNTING, TRAPPING, GUIDING

(Commercial Use of Wildlife)

Hunting, guiding, trapping as well as non-consumptive and

subsistence uses of wildlife have played a consistently

important role in the Yukon economy; providing a stabilizing

influence when other economic sectors have changed

dramatically through boom and bust cycles. Outside of

Whitehorse, wildlife-based commercial activities have

provided a cash income for a larger number of Yukoners than

any other sector. A small cash income from trapping or

guiding, in combination with subsistence uses of wildlife

continues to be a common combination providing a livelihood

for rural Yukoners. In addition, resident hunting and

non-consumptive uses of wildlife are the basis for much of

the recreational activity in the territory.. They provide

additional economic benefits through equipment sales and

other spin-off effects.

Harvest data suggest that there is a slow increase in the

utilization of our wildlife. The wildlife resources that

form the basis for these economic activities are generally

in good condition, however our understanding of the

distributions,

is incomplete.

critical that

habitats and concentrations of each species

In light of these two factors it remains

we

economic benefits

carefully manage each

are to be sustained.

species i£ the

It is therefore

often suggested that we need to consider innovative ways to

increase the utilization and value of the wildlife that is

already harvested, rather than attempt to expand the total

size of the commercial sector.

The following paper describe the existing economic uses of

wildlife followed by an outline of some of the constraints

and opportunities that are available in each sector.. The

contents of the paper were discussed and modified on the

basis of two Sectoral Workshops prior to the November 1-2

conference.

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2. THE YUKON'S WILDLIFE

The big game species present in the Yukon are some of the

most significant in North America and their importance to

Yukoners is well established.. Sport hunting and guided

hunts of moose, caribou, sheep, goats, black bear, and

grizzly bear are permitted, while cougar, bison, elk,

muskoxen, mule deer, and polar bears (controlled harvest

allowed) are protected species. These species are managed

to meet the needs of subsistence, sport, commercial, and

non-consumptive users, under the terms of the territorial

Wildlife Act.

Small game species include the furbearers valuable to

trappers (wolves, marten, lynx, muskrat, wolverine etc.) as

well as birds of prey and upland and migratory game birds

which are important as subsistence foods. Management of

furbearers is also mandated under the Wildlife Act (Trapping

Regulations). Migratory birds are jointly managed by Y.T.G.

and the federal Canada Wildlife Service.

3. PRESENT USES OF WILDLIFE

Wildlife resources in the Yukon have economic value, whether

they are hunted, trapped, captured live for sale, bred in

captivity or simply viewed or photographed.

valuation of these various uses is not yet

however some estimates have been made. The

sections outline some of these estimates

out where more work would be worthwhile.

3.1 Commercial Outfitting (Non-Resident Hunting)

A complete

available,

following

and point

The outfitting industry provides big game hunting guide

regulated under the

estimated to provide

services to non-resident hunters,

Wildlife Act. The industry is

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approximately $4.0 million in direct and indirect benefits

to the Yukon economy. It is a labour intensive business and

most expenditures on labour, equipment and food occur in

rural areas.

Guiding of non-residents (primarily U.S. and European) is a

limited entry business with outfitting areas being allocated

in rigidly defined geographic areas. This means there are

constraints on any expansion on the size of the industry.

There are also biological limitations on the number of

trophy animals that can be produced in any one area so this

also constrains the potential for expansion.

3.2 Trapping

Approximately 750 Yukoners trap 15 different species of

furbearers on 380 registered traplines and in four group

areas provided to aboriginal peoples. Harvested fur has

averaged between· $1 .. 0 and $1. 5 million in value in recent

years.

The income provided by the fur harvest is often the only

cash income available to residents in rural areas. In

combination with subsistence hunting, trapping has a

significance which is much larger than is suggested by the

actual amount of money involved. The indirect benefits of

the fur industry are therefore acknowledged to be largely

unquantifiable.

Although no species of furbearers are considered to be

endangered (in fact some areas of the Yukon are probably

underutilized) special management and research projects on

pine marten, wolverine and muskrat are underway; to maintain

or rebuild their numbers.

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3.3 Resident Hunting

Resident hunting has importance to the economy of the Yukon

in several different ways. Expenditures on recreational

equipment and supplies have direct and indirect benefits in

the wholesale, retail and service sectors (value is not yet

known). The value of the meat taken during the hunt is

estimated to have a substitution value of $0.5 million

dollars. The recreational value to Yukoners is very

significant, and in combination with sport fishing and

wilderness travel forms an important part of the Yukon

lifestyle.

Resident hunting pressure is having an effect on species

such as moose in the southwest Yukon and there are difficult

management problems associated with such a decline e

Solutions include controlling other predators, limiting

resident hunting, and re-distributing the hunt to other

areas.

Resident hunting fluctuates with changes in the Yukon's

population, economic conditions and the availability of

game ..

3.4 Non-Consumptive Uses of Wildlife

Non-consumptive uses of wildlife include wildlife viewing,

photography by residents and non-residents, uses associated

with the activities of Wilderness (adventure travel) guides,

and scientific uses. Popular locations such as Sheep

Mountain in Kluane National Park Reserve are well known to

most Yukoners, and visitors come to the Yukon for many other

wildlife viewing opportunities. The Dempster Highway is now

becoming widely recognized for its wildlife values, but the

list of visitors extends to diverse, generally unknown

groups like bird watchers and butterfly collectors. All of

these activities have a role in the growing tourism economy

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(travel expenditures, equipment purchases, guide fees etc.)c

It is extremely difficult to place a dollar value on such

diverse activities, with such strong links to the tourism

sector. However,. examples from other areas such as the

brown bear observatory at McNeil River Falls in Alaska

demonstrate that a specific wildlife viewing opportunity, if

properly developed, can become a major economic activity,

recognized worldwide; it becomes the reason people travel to

a particular destination. Properly integrated with other

tourism opportunities, wildlife attractions could

significantly increase the number of outside visitors to the

Yukon.

[Note: An EDA sponsored project is studying economic aspects

of the non-consumptive use of wildlife.]

3.5 Subsistence Uses of Wildlife

Subsistence uses of wildlife (non-commercial) are the

subject of a separate Yukon 2000 sectoral discussion on the

non-wage economy. However, it is useful to note that the

value of this sector of the economy is estimated to be worth

somewhere between $1.0 and $10.0 million dollars depending

on one's assumptions. These estimates are based on studies

in three Yukon communities (Ross River, Teslin and Old Crow)

and the methods used are imprecise and fraught with

difficulty. Nevertheless, the estimates serve to point out

that subsistence uses are very significant and cannot be

overlooked when we analyze the Yukon economy.

[Note: A new EDA project has been recently approved to study

the value of the total subsistence economy in the Yukon for

the first time.]

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4. CONSTRAINTS AND OPPORTUNITIES : THE GROWTH AND DEVELOPMENT OF

THE COMMERCIAL USE OF WILDLIFE IN THE YUKON ECONOMY

Each of the commercial uses of wildlife face a number of

constraints on their growth and development; some are

biological constraints; some relate to human resources;

still others result from limited financial and other

business resources available to trappers, outfitters and

others. With most of these constraints however, there is a

potential opportunity to identify actions that could serve

to improve the economic circumstances of the individuals

involved. The following lists identify a selection of the

constraints, and complementary actions which can be

undertaken by government and the private sector to aid in

the overall development of this economic sector.

4el Outfitting (Non-Resident Hunting)

a. Well-trained assistant guides are often difficult to

find and employ. There has been an increasing need for

assistants who are competent both in the field

providing competent, safe services to the client, and

in the "office" ensuring that the business is well and

efficiently run ..

b. There is a trend emerging in which clients of guide

outfitters are demanding more services and better

facilities either in a base camp or in the bush. This

type of deman~ places financial pressure on any small

business, which is difficult to meet when there are a

lirni ted number of clients that can be taken into an

area in any one year for a hunt ..

c.. One often discussed method to increase the number of

clients utilizing an outfitting area is to diversify

the activities that are available, particularly outside

of hunting season. To do so, requires a different type

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of marketing and often different assistants with

different types of skillse

d. Finding new alternative markets for an outfitting

business can be expensive, with no guarantees for a

positive result. Some outfitting areas are better

suited to trail and river trips, photography etc. than

others and there is the potential for competition with

other big game outfitters as well as adventure travel

guides that do not operate from fixed facilities or in

a fixed location.

e. There are many expensive, fixed costs in a guiding

business: and facilities construction and maintenance

costs are often high. Yet the areas in which an

outfitter operates are not guaranteed to remain in a

wilderness state. These factors make it difficult to

finance any improvements or expansion.

f. It is necessary to attempt to manage a wildlife

population in a manner which ensures that populations

remain healthy and don't decline. In many areas

however it is difficult to be certain about the exact

size or status of a particular population. This means

that wildlife regulations often seem rigid and

restrictive, and may appear to limit the economic

opportunity available to an outfitter.

g. In certain geographic areas there is a need to separate

different types of visitors to an area. Hunting

parties, and non-hunting photographers do not often mix

well.

4.2 Trapping

a. Start-up costs and the cost of access to the trapline

are often prohibitively high. Money is needed early in

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the season and there is no guarantee that fur harvest

will be adequate to pay back an investment later in the

year. Better access to loans or grubstakes would

improve the ability of trappers to fully utilize

trapping areas.

bG Many traplines are underutilized but it is difficult to

reassign these to other individuals who are interested

in starting in the business. Similarly, many assistant

trappers already in the business have difficulty

obtaining the rights to an area for their exclusive

use no matter how well trained or enthusiastic.

c. Training for first time trappers and assistants is

important if a trapping concession is to be

successfully used and if the fur is to be properly

handled.. There are a wide variety of skills neededr

and field conditions are often difficult.

d. Proper fur management is essential if premium prices

are to be paid to the trapper. Prices drop

dramatically if the pieces in question cannot be used

in the best quality and most fashionable garments.

e. Fur is normally exported from the Yukon with little

processing. Local tanning could likely be expanded and

greater use of fur in locally produced products would

significantly add to the value of the fur industry in

the Yukon economy. New innovative uses for fur would

similarly increase the value-added economic benefits

which remain in the Yukon.

f e Some trappers face growing competition for the land in

their trapping area, from a diverse set of other

developments such as farming, forestry and recreation.

Having the trapping rights in an area does not provide

exclusive use of the land and as other economic sectors

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expand there is increasing pressure on trapiines,

particularly in areas close to major settlements.

go It has been suggested that the use of trapline

facilities could be expanded in innovative ways;

providing adventure travel opportunities to

non-residents; assisting in scientific research; and

providing educational opportunities for schooi and

university programmes.

h. The anti-fur movement in southern Canada and elsewhere

could have a significant negative effect on the fur

industry, if not counteracted. The experience in the

eastern Arctic shows the severe social impact that can

result from a collapse in fur prices. The Yukon is

vulnerable however there is optimism now that the

industry is better organized and fighting back.

i. Fur prices fluctuate sharply with little overall

consistency from year to year. This is caused by

changes in fashion and other volatile factors as

diverse as public opinion and the supply of fur from

other regions* It is not clear if there is an

effective way to moderate these fluctuations in the fur

prices paid to Yukon trappers, however a role for the

Yukon Trappers Association providing a marketing board

has been suggested.

j. Fur harvest fluctuates from year to year, based in part

on biological factors and in part on changes in effort

by trappers. There is a need to improve an

understanding of the cyclical fluctuations in the

availability of furbearers and the logical upper limits

of fur production.

k. Live trapping of furbearers for use in fur farms, zoos

or for government use is lucrative, but remains

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controversial among trappers. It is feared that export

of live furbearers to fur ranches eventually leads to

increased competition for a limited market and is not

in the long term interests of the industry~

[Note: A Renewable Resources study is underway,

examining the extent and severity of the competition

for land among trappers, agriculture, forestry and

others .. ]

4o3 Resident Hunting

The economic benefits of resident hunting activity are

normally considered to be indirect, with fluctuating, often

unpredictable changes in hunter effort from year to year ..

Therefore it is unlikely that any directed "expansion" of

what is essentially an unorganized activity would be

possible. Most of the recreational and subsistence benefits

are experienced by individuals who hunt for personal reasons

rather than for a clearly defined economic reason. It has

been suggested however that changes in government regulation

could help to foster additional businesses providing

indirect services for resident hunters.

ae By allowing the sale of edible and non-edible portions

of game taken by resident hunters, less game would be

left in the bush following a hunt.. Sales of hides,

horns, and meat etc. could conceivably increase the

size of the fledgling tanning business and provide

other products for new innovative businesses (eg.

artistic uses of moose hides and hair).

b.. By permitting expediting operations to be established

to service the resident hunter (not based in a

particular geographic area) government would increase

the opportunities available to people with backcountry

experience who are presently limited to guiding

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non-consumptive users of wildlife.

Both ideas are controversial because of the concern that

increased hunting pressure would result from the increased

incentives provided by the new businesses. This could

potentially increase the harvest in areas where hunter

success rates have already been dropping ..

4.4 Non-Consumptive Uses

A number of contraints have been identified which limit the

realization of the economic benefits from non-consumptive

use of wildlife ..

Resident and Non-Resident Viewing and

Photographic Opportunities

a. There is a general lack of acknowledgement of the

economic values of resident and non-resident

non-consumptive uses of wildlife.

study and quantify the size and

activity.

There is a need to

importance of this

b.. There is a need to provide specific wildlife viewing

opportunities for non-residents in particular.. This

would mean providing better advertising, better access,

and better interpretation of wildlife for visitors to

the Yukon ..

c. Similarly, it is suggested there is a need to ensure

that wildlife can be observed close to well travelled

routes. This would be most effectively accomplished by

providing game sanctuaries {no-hunting) in selected

areas.. Captive viewing opportunities could also be

provided.

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d ..

e.

Better wildlife interpretation is needed, as is basic

information about where to see wildlife in natural

settings.

There are well acknowledged potential and real

conflicts between consumptive and non-consumptive users

of wildlife. Government should better acknowledge this

and manage land and other resources to provide for a

wider range of uses, often separated from one another.

The concept of allowing all uses, everhwere, does not

in reality provide for the needs of the non-consumptive

user. Wildlife are not available for viewing and

photography ..

Wilderness Guiding

a. There is a need for government to acknowledge the size

and significance of the non-consumptive guiding sector

and ensure that land is managed in a manner that allows

the opportunities provided by the Yukon's wilderness

to be retained (Wilderness is a resource in its own

right that could potentially be acknowledged through a

Wilderness Act).

b. The industry believes that there are opportunities for

growth through better marketing, increasing the range

of services, better cooperation among guides, and

improving the quality of the services offered.

(Deciding on a fair and effective level of government

involvement and assistance in these activities has yet

to occur and is somewhat controversial).

c. There is a need for some form of regulatory framework

that will ensure proper safety conditions and a high

quality experience for clients (Again, the split

between industry and government responsibility for

these concerns remains to be decided.

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d. There is a need for research on the biological and

social carrying capacity of different areas of the

Yukon to ensure that they are not overused. There is a

consistent need for a broader understanding 0£ the

economic benefit of the non-consumptive use of wildlife

and wilderness resources.

e* An improved mechanism to resolve conflicts about access

to resources, land use and related problems is needed.

4.5 Captive Breeding of Wildlife

Captive breeding projects have been suggested for

furbearers, big game animals and birds of prey.

a. Captive Breeding of Furbearers

Captive breeding for live export and for local fur

production is economically uncertain and somewhat

controversial. Nevertheless some Yukoners believe that

it is one of the best ways to increase the economic

return from fur processing, based on historical

evidence and examples in southern Canada. Others fear

that exporting live animals will increase southern

competition and that fur farming will reduce the

viability of wild fur trapping which is largely

community-based. Fur farms are also less able to

adjust rapidly to changes in market conditions and

tastes, and they have relatively rigid fixed costs that

makes them very vulnerable to changes in markets.

b. Big Game Ranching

There has been growing interest in big game ranching in

recent years, and a new elk ranching project is now

underway. Reindeer and other species have been

successfully ranched in other areas and projects

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involving caribou, muskox and others have been

suggested here.. With the considerable experience in

other areas already demonstrates success, it is felt

that Canada is missing a significant economic

opportunity ..

With "wild" species raised in captivity, there is an

assured supply of animals, producing meat, hides and

other products. It seems to be a reasonable assumption

to believe that there would be a relatively stable

market for these products, (particularly the meat)

however there is very little local experience in game

ranching and it is moderately expensive to initiate ..

In addition, there are limited slaughtering, packing,

veterinarian and meat inspection services available.

Additional problems in establishing big game ranching

operations include: the expense of fencing large areas

of land; problems with wild predators; dedicating wild

habitat for domestic purposes; conflicts with other

land users; and problems with the genetics and general

health of animals.

Notwithstanding these issues, those who express

enthusiasm about the industry potential believe that

it is general bureaucratic negativism that is the

largest barrier to overcome. If a market were allowed

to exist for the products of game ranching, and if

there was an acknowledgement of the many secondary

products of such an industry, they argue that the

economic benefits would become obvious.

The general conclusion is cautiously optimistic and it

is suggested that it is now appropriate to proceed with

a demonstration projecto

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c~ Birds of Prey

It has been suggested that there are signi£icant

economic benefits to be achieved from the captive

breeding of birds of prey. However there are

significant public relations problems posed because of

the perception that all these species are endangered

and that economic use of the species should be

prohibited. Nevertheless captive breeding has proven

successful in other areas and in the Yukon in the past.

d. Zoos and Game Farms

The economic benefits of providing captive viewing

opportunities for tourists as well as spin-off

activities

are well

such as trophy museums

established outside of

and souvenir

the Yukon.

sales

The

existing Yukon Game Farm has had periods of moderate

success, however the overall economic viability of a

fully developed zoo has not been tested.

Problems in establishing a well integrated operation

include: demonstrating the financial feasibility;

obtaining and maintaining animals; obtaining adequate

land; providing vet services; and achieving government

regulatory flexibility.. One possible method to

overcome these problems is to provide a mixed

operation which incorporates a game farm,.

ranching, and an educational/research functione

4e6 Scientific Uses of Wildlife

game

Although it is difficult to estimate the economic value of

the activities of scientists in the Yukon it is felt to be

quite significant with growth potential. To attract more

researchers however,. there is a need for improved support

service. These could include: expediting services; a

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trained labour supply; library services; and general

institutional support. These could logically be provided

(in part) by Yukon College, or by a Science Institute if

such an enterprise is developed~

Involving Yukoners in the scientific programme of outside

researchers is another way to expand the range of

opportunities available to trappers and outfitters whom

already have facilities and experience in the field.. In

combination with better communications and public relations

efforts by the scientific community, an effort to involve

local residents in research activities would do much to

improve the relationship between Y.T .. G. scientists,

university scientists and the communities in the areas where

the work is undertaken.

4.7 Government Management

A number of suggestions has been forthcoming to improve

government management activities:

a. In many areas of the Yukon, government has insufficient

information about game species and the ability of the

environment to produce game4 Obviously, this makes it

difficult to identify a harvestable surplus.

b .. Several wildlife populations have declined from

historic levels and the reasons for such decline are

not always obvious. Attempts to allow such species to

recover become controversial because it means limiting

the harvest by various groups or predator control

programmes.

c. When a wildlife resource is limited, the allocation of

the harvestable surplus becomes difficult. Decisions

about allocations for subsistence, sport, or commercial

hunts often lead to controversial debates, which are

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hampered by the lack of a precise understanding of the

numbers of animals in the population.

d. There is a continuing need to better educate all

Yukoners and southern Canada about the Yukon's wildlife

species, their health, and the legitimate uses of

wildlife.. The populations of animals are generally

healthy yet there is a southern perception that

wildlife in the north are fragile and/or endangered$

e.. There is a need to improve the methods we use to

allocate land to specific uses and to develop better

ways to resolve conflicts when they arise. When

trade-offs about land and resource uses are made, there

is a need for a consistent and fair compensation policy

for the loss of livelihood suffered by a trapper or

outfitter.

f. Government involvement in business activities is often

considered controversial but there may be ways for

government to encourage the development of new economic

activities in cooperation with user groups like the

trappers, outfitters and wilderness guides. The

Renewable Resource Sub-Agreement to the Canada Yukon

Economic Development Agreement provides opportunities

for both start up funding for experimental projects as

well as for background research in new areas ..

may be other ways that government could help.

There

g.. Government involvement in fighting the anti-fur

movement is generally well known, and it will likely be

necessary for it to continue. The past years efforts

should be evaluated to determine if new strategies

would be worthwhile.

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5. CONCLUSION

Estimates of overall economic value of this sector vary

widely from a low of $5.0 million to a high of $10e0 million

(or higher) depending on the method of valuing the resource,

what is actually included, and the particular year in

question. It is clear we need better data before a more

precise estimate is possible. It is also important to

stress that the wildlife activities have value to the Yukon

which goes well beyond the dollar value assigned to the

activity in question.

There are a number of ways in which the hunting, guiding,

and trapping sectors of the Yukon economy can be improved or

made more efficient.. Some of these are outlined above,

described either as constraints or opportunities, for

discussion during the Yukon 2000 economic strategy

development project. No doubt there are other ideas which

can be contributed and developed into the strategy.

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